Item No. 2
Town of Atherton
CITY COUNCIL STAFF REPORT – STUDY SESSION
TO: HONORABLE MAYOR AND CITY COUNCIL
GEORGE RODERICKS, CITY MANAGER
FROM: ROBERT OVADIA, PUBLIC WORKS DIRECTOR
DATE: SEPTEMBER 4, 2024
SUBJECT: DIRECTION AND FEEDBACK REGARDING TRAFFIC STUDIES
AND RECOMMENDATIONS
RECOMMENDATION
It is recommended that the Council review and provide feedback and direction to staff regarding prioritization of traffic improvements.
BACKGROUND
Over the last several years, a variety of traffic studies have been completed to assist the Town in outlining areas where traffic flows can be improved and cut-through traffic reduced in various locations. These studies include:
Alameda de las Pulgas Corridor Traffic Study – AMG 2019 Local Traffic Flow – Long Range Planning Solutions Study – TJKM 2019 El Camino Real/Selby Lane Traffic Analysis – Mark Thomas 2017 Neighborhood Traffic Management Action Plan
Local Roadway Safety Plan (draft 2024)
As background for discussion of this item, the Council was provided with copies of the above reports for early review.
Each of the studies included recommendations for improvements and the Town, with the approval of the City Council, has initiated various Capital Improvement Projects using the priorities and direction provided by these studies. However, a refresh of Council consideration and confirmation of priorities would be helpful as staff moves forward with projects that improve mobility and safety along Town roadways.
In addition to the above studies, the Town is working with the San Mateo County Transportation Authority in evaluating complete streets options for El Camino Real to accommodate pedestrian Traffic Studies Feedback and Direction
SEPTEMBER 4, 2024
and bicycle facilities on this important route, and has released a request for proposals to update the Town’s Bicycle and Pedestrian Master Plan. These efforts will also be used in outlining priorities for improvements to our roadway network. The Town also completed a traffic impact study associated with its proposed Housing Element which identified impacts and potential improvements.
ANALYSIS
Major findings and recommendations of the above reports include the following:
Alameda de las Pulgas Corridor Traffic Study – AMG 2019 • Intersection of ADLP and Woodside Road – Update signal timing and provide traffic signal coordination between Woodside Road and Hull Avenue. (Outside of Town Limits – Caltrans signal)
• Intersection of ADLP and Hull Avenue – Provide traffic signal coordination between Woodside Road and Hull Avenue and reconstruct all the corner ramps to meet current ADA standards. (Outside of Town Limits – SM County signal) o San Mateo County upgraded ramps in association with their street slurry seal project
o The Town can request San Mateo County evaluate and adjust signal timing in a coordinated manner with the completion of the Alameda de las Pulgas Traffic and Safety Improvements project
• Intersection of ADLP and Stockbridge Avenue – Installation of a roundabout or a traffic signal is expected to reduce traffic delay at the intersection. However, due to restricted right of way, it was recommended to install a traffic signal. (Shared intersection between Town and SM County)
o Town has included installation of a pedestrian activated rectangular rapid flashing beacon to improve pedestrian visibility and mobility in the FY 23-24 Capital Improvement Program. The project design is approximately 90% complete and was be submitted to San Mateo County for review. The Town will be working with San Mateo County to secure a contractor once the design has been approved. • Intersection of ADLP and Atherton Avenue – Installation a roundabout or a traffic signal at this intersection is expected to improve traffic operations and intersection LOS from existing conditions. However, due to restricted right of way and the potential need for property acquisition to install a roundabout, installation of a signal was deemed more feasible.
o The reconfiguration and signalization of this intersection is included in the scope of the Alameda de Las Pulgas Traffic and Safety Improvements Project, which is currently in design. The City Council has also approved an additional analysis to better determine feasibility of a roundabout at this location. The roundabout analysis is the subject of a separate staff report.
• Intersection of ADLP and Camino Al Lago – Installation of a traffic signal at this intersection and remove the existing mid-block crosswalk and signal on ADLP approximately 150 feet south of this intersection; and, reconfigure the intersection to Traffic Studies Feedback and Direction
SEPTEMBER 4, 2024
shorten the crossing distances. (Shared intersection between Town and SM County; midblock crossing SM County) – o The signalization of this intersection, along with the removal of the mid-block pedestrian activated signal, is included in the scope of the Alameda de Las Pulgas Traffic and Safety Improvements Project, which is currently in design. • Intersection of ADLP and Valparaiso Avenue – Installation of protected left-turn phases for the ADLP approaches at this intersection (Outside of Town Limits – SM County signal)
• [GR1]Include a summary of next steps - which ones are in 2024/25 CIP, which ones are programmed in out years.
Local Traffic Flow/ Long Range Planning Solutions Study – TJKM 2019 Alameda de Las Pulgas:
• Left-turn restrictions from ADPL to Stockbridge Avenue and to Polhemus Avenue – restrict during the am peak (Stockbridge Avenue intersection is shared with SM County). o Review of the potential restriction of turning movements has been deferred pending completion of eth Alameda delas Pulgas Traffic and Safety Improvements project.
• Signalization of the ADPL/Atherton Avenue intersection; Square-out the intersection by removing existing pork-chop and adding an exclusive right-turn lane making it safer for all modes of transportation; Provide protected left-turn phasing along Alameda De Las Pulgas with westbound right-turn overlap for Atherton Avenue. o As noted above, the reconfiguration and signalization of this intersection is included in the scope of the Alameda de Las Pulgas Traffic and Safety Improvements Project, which is currently in design.
• Meter traffic along the corridor upon signalization
o This option would be considered in the implementation of the Alameda de las Pulgas Traffic and Safety Improvements project and coordinated with San Mateo County
Valparaiso Avenue:
• The intersections of Valparaiso Avenue/Emilie Avenue and Valparaiso Avenue/Elena Avenue operate at LOS F during all study peak periods. Though these intersections meet peak hour signal warrants, to operate at acceptable level of service, exclusive left-turn lanes have to be provided along with the signalization at the intersections which would require ROW take. Due to ROW constraints this would not be a viable option at this time.
TJKM also indicated that a one-way circulation loop between Elena Avenue and Emilie Avenue may improve operations. As Valparaiso is shared jurisdictionally with Menlo Park, coordination with Menlo Park would be needed.
o The Town is currently working with the City of Menlo Park on the slurry seal and restriping of Valparaiso Avenue to include buffering of the bike lanes. No action has been taken regarding evaluation of roadway widening, signalization or implementation of a one-way traffic loop.
Middlefield Road:
Traffic Studies Feedback and Direction
SEPTEMBER 4, 2024
• Signalization of Middlefield Road/Fair Oaks Lane and Middlefield Road/Watkins Avenue intersections
o This item has not yet been programmed.
• Improve signal timings along Middlefield Road by updating the coordination plans through the corridor.
o Retiming and coordination of the signals along Middlefield Road from Marsh Road to Ringwood Avenue was completed through the Metropolitan Transportation Commission (MTC) Program for Arterial System Synchronization (PASS).
• Provide Northbound Left-Turn restrictions from Middlefield Road onto Glenwood Avenue during the a.m. peak period.
o This item has not been implemented.
• Meter the traffic along the corridor at controlling intersections like Middlefield Road/Fair Oaks Lane, Middlefield Road/Marsh Road and Middlefield Road/Oak Grove Avenue. o Signal timing along the corridor has been updated. Metering traffic north of Marsh Road would require upstream signalization, which has not been programmed.
• The study also made recommendations on street classification with proposed guidelines to support walking, biking, and transit usage along various streets o Certain street classifications were included in the adoption of the Circulation Element of the General Plan.
El Camino Real/Selby Lane Traffic Analysis – Mark Thomas 2017 • The study determined that most accidents, during the study period, could be attributed to vehicular turning movements. Based upon the review of the accident history, it was advised that controlling and regulating the movement of vehicles by installation of a traffic signal or physically limiting the number of movements by utilizing raised medians would improve the safety and operations of the Selby Lane/ECR intersection. Although, at the time, Caltrans preferred the traffic signal alternative since they believe it’s a better solution for reducing vehicular collisions and provide a safer crossing for pedestrians and bicycles, based on outreach at the time, the non-signalized alternative was considered less controversial for the Selby Lane neighborhood.
o Funding for improvements to this intersection was included in the Town‘s One Bay Area Grant (OBAG) application for the Selby Lane Bike Lanes Project.
Grant funding for the project was not approved. The current El Camino Real Complete Streets Gap Closure Study is evaluation the El Camino Real from north of Selby Lane to Valparaiso Avenue and will include recommendations on how to improve safety of all roadway users along the corridor.
Neighborhood Traffic Management Action Plan
• Recommended replacement of various signs to increase visibility – Completed • Restriping school crossings and installation of advance (shark tooth) yield lines – Completed
• Recommended changes to centerline striping on Atherton Avenue and Stockbridge Avenue – Completed
Traffic Studies Feedback and Direction
SEPTEMBER 4, 2024
• Recommended installation of speed humps in various locations to reduce speeding and cut-through traffic
o Partially completed – Staff has initiated outreach for the remaining speed humps identified: Selby Lane (east-west), Selby Lane (north-south), Stockbridge Avenue and Encinal Avenue. Staff has received a petition for the installation of speed humps from residents of Maple Avenue, which is currently being reviewed. • Recommended installation of turn restrictions in various locations o These have not yet been implemented.
• Improvement of the Fair Oaks Lane/Station Lane/LLoyden Drive intersection – Under construction
• Traffic and safety improvements along the Alameda de las Pulgas corridor – Included in the Alameda de Las Pulgas Traffic and Safety Improvements Project. • Bike lane improvements on Selby Lane, Atherton Avenue, Valparaiso Avenue (enhancement), Stockbridge Avenue, and Marsh Road
o Selby Lane Bicycle Lane Improvements are currently under design and enhancements to the bike lanes on Valparaiso Avenue are pending construction.
Evaluation of options of other bikeways will be included in the refresh of the Bicycle and Pedestrian Master Plan.
• Installation of a traffic signal at the Middlefield Road/Fair Oaks Lane intersection o This item has not yet been programmed
• Working with schools and school districts to implement rectangular rapid flashing beacons (RRFBs) at mid-block crossings via safe routes to schools or other funding programs
o Pending coordination and funding.
Local Roadway Safety Plan
The Local Roadway Safety Plane is intended to assist the Town in promoting a culture of roadway safety in Atherton’s departments, educational institutions, and residents, with a goal of reducing fatal and severe injury crashes to zero by 2050.
The Plan identified a High Injury Network (HIN) for the Town, including Motor Vehicle, Pedestrian and Bicyclist, including the following streets:
• El Camino Real (State Highway)
• Alameda de las Pulgas (bicycle)
• Middlefield Road (vehicle)
• Marsh Road (vehicle)
• Oak Grove Road (bicycle and pedestrian)
The Plane identified intersections for priority consideration, including the following streets:
• El Camino Real (State Highway)
• Valparaiso Avenue (shared with Menlo Park)
• Middlefield Road
• Alameda de las Pulgas
• Oak Grove Avenue
Traffic Studies Feedback and Direction
SEPTEMBER 4, 2024
Staff is planning on presenting the draft Local Roadway Safety Plan to the Transportation, Bicycle and Pedestrian Safety Committee for review and consideration at their upcoming meeting and would then bring the plan for review by the Council. Concurrent with the adoption of the plan would be consideration of designating “safety corridor” streets that would allow for speed limit reductions along those corridors per CVC 22358.7.
El Camino Real
The Town recently completed it’s California Environmental Quality Act (CEQA) review of it’s proposed Housing Element update. As part of the CEQA evaluation, the Town conducted a traffic analysis associated with the proposed changes. The study indicated that the added trips would not cause an adverse impact, as defined by the Town, at any of the signalized study intersections. The study did however identify issues at four unsignalized study intersections, including two on El Camino Real.
• Selby Lane - Selby Lane was estimated to experience long delays equivalent to LOS F under the study scenarios. The peak-hour volume signal warrant analysis indicated that peak-hour volumes at the intersection would meet the peak-hour volume warrant under all scenarios, both with and without the project traffic.
• Alejandra Avenue - During the AM peak hour, Alejandra Avenue at El Camino Real was estimated to experience long delays equivalent to LOS E under the study scenarios. The added project trips would increase the delay for this approach. The peak-hour volume signal warrant analysis indicates that peak-hour volumes at the intersection would not meet the peak-hour volume warrant under any scenario, with or without the project traffic, therefore signalization was not recommended.
As noted above, the Town is conducting a Complete Streets Gap Closure study for the El Camino Real corridor from north of Selby Lane to Valparaiso Avenue, in coordination with the San Mateo County Transportation Authority, the County of San Mateo, the City of Meno Park, Redwood City and Caltrans. This study will identity alternatives to improve safety and mobility of all users of the roadway. The evaluation will include key intersections and potential crossing improvements and/or signalization needs. It is important to note that the corridor is a State highway, under the jurisdiction of Caltrans and any improvements to El Camino Real must be coordinated and approved by Caltrans.
Funding for required design, environmental reviews and implementation would be sought after plan development and selection of a preferred alternative. Due to costs and complexities, it is anticipated that the Town would seek outside funds for the project as grant opportunities arise.
The City Council, through the Capital Improvement Program has prioritized and approved various traffic and safety improvements throughout the Town. As noted above, a number of the recommendations have been implemented or are in various stages of implementation.
The following recommendations are made to assist in prioritization of future projects:
• Complete ongoing projects such as the ADPL Corridor Traffic and Safety Improvements, Selby Bicycle Lanes and the El Camino Real Complete Streets Gap Closure Study Traffic Studies Feedback and Direction
SEPTEMBER 4, 2024
• Continue implementation of the recommendations outlined in the Neighborhood Traffic Management Action Plan
• Complete improvements along Valparaiso Avenue, coordinated with Menlo Park • Update of the Town’s Bicycle and Pedestrian Master Plan, developed in 2014. The update of the master plan will assist in guiding and prioritizing bicycle and pedestrian projects desired by the Town and its residents
• Consider designating “safety corridor” streets that would allow for speed limit reductions along those corridors per CVC 22358.7
• Fund the next phase (design and environmental review) of the El Camino Real Complete Streets Gap Closure project following completion of the planning study • Evaluation of traffic signals on Middlefield Road at Watkins Avenue and at Fair Oaks Lane, concurrently review other potential traffic safety improvements along the Middlefield Road corridor
• Work with Caltrain on the required mitigation measures associated with the Peninsula Corridor Electrification Project including signalization of the El Camino Real / Watkins Avenue intersection and the Middlefield Road / Glenwood Avenue Intersection Additionally, as the Local Roadway comes for consideration by the Council, feedback on potential speed limit speed limit reductions along safety corridors and in school zones is being requested.
The City of Menlo Park is requesting consideration of a speed limit reduction on Valparaiso Avenue from the current 30 miles per hour to 25 miles per hour. Menlo Park, through their Vision Zero Action Plan, established Valparaiso Avenue as a safety corridor / high collision corridor, which allows for the additional 5 mile per hour speed limit reduction. To enact a concurrent reduction in the speed limit, the Town would also need to designate Valparaiso Avenue as a safety corridor. Staff is planning on presenting the draft Local Roadway Safety Plan to the Transportation, Bicycle and Pedestrian Safety Committee for review and consideration at their upcoming meeting and would then bring the plan for review by the Council.
Council feedback and direction regarding traffic and safety improvement priorities will assist staff as it develops programmatic funding outlooks and budgets, evaluates grant funding opportunities for project implementation, and responds to residents regarding traffic and safety concerns.
FISCAL IMPACT
None at this time.
GOAL ALIGNMENT
This Report and its contents are in alignment with the following Council Policy Goals:
• Goal Area B – Preserve Small Town Character and Quality of Life • Goal Area D – Manage Circulation and Improve Safety
• Goal Area F – Be Forward-Thinking, Well-Managed, and Well-Planned
POLICY FOCUS
Traffic Studies Feedback and Direction
SEPTEMBER 4, 2024
The Council’s policy focus should be on input and prioritization of traffic and safety improvements.
PUBLIC NOTICE
Public notification was achieved by posting the agenda, with this agenda item being listed, at least 72 hours prior to the meeting in print and electronically. Information about the project is also disseminated via the Town’s electronic News Flash and Atherton Online. There are approximately 1,200 subscribers to the Town’s electronic News Flash publications. Subscribers include residents as well as stakeholders –to include, but be not limited to, media outlets, school districts, Menlo Park Fire Protection District, service provides (water, power, and sewer), and regional elected officials.
COMMISSION/COMMITTEE FEEDBACK/REFERRAL
This item has not been before a Town Committee or Commission
ATTACHMENTS
None